Introduction to Highway 89 study

PROJECT INTRODUCTION
STUDY OF U.S. HIGHWAY 89 THROUGH LOGAN CANYON
UTAH DEPARTMENT OF TRANSPORTATION
PURPOSE
The Utah Department of Transportation (UDOT) has the respon­sibility
of maintaining all state and federal highways in a
condition that will allow safe transportation. A number of
specific sites along U.S. Highway 89 in Logan Canyon have
been identified by UDOT as requiring repair in the near fu­ture
to provide safe transportation in the Canyon. Much of
the highway in the Canyon lies within the Cache National
Forest, which is administered by the U.S. Forest Service
(USFS) who must approve all work on the road beyond routine
maintenance. As a result of these currently needed repairs
and other perceived problems, UDOT and USFS have agreed that
an overall transportation plan for the Canyon is necessary
and that a comprehensive study of the possible problems and
needed repairs/improvements should be conducted rather than
examining each site independently as major problems occur.
To begin, UDOT selected CH2M HILL, a consulting firm of
Engineers, Planners, Economists, and Scientists with offices
in Salt Lake City and other communities throughout the country
to conduct the study. Valley Engineering, Inc. of Logan is
a major subcontractor.
This study has three major objectives:
o To identify locations on the road where problems
in safety, maintenance, road design, and capacity
occur, and to document these problems.
o To propose several alternative means, through repair
or improvements, to correct the problems.
o To conduct an analysis of the potential impacts of
the proposed alternatives on the environment.
BACKGROUND
This portion of U.S. 89 has been under scrutiny by UDOT for
some time because of congestion, accidents, and maintenance
problems. The highway has been on UDOT's schedule for im­provement
since the late 1950s. In 1961, improvements were
made to the road between Logan and DeWitt Springs. In 1969,
the section between DeWitt Springs and Right Hand Fork was
improved. Pre-design work on improvements between Right
Hand Fork and Ricks Springs was completed in late 1968, but
following passage of the National Environmental Policy Act
1
(NEPA) in 1969, local concern showed the necessity to re­evaluate
the project. The Federal Highway Administration
(FHWA) determined in 1972 that an environmental impact state­ment
(EIS) would be required for the project in accordance
with NEPA. At this time, the project consisted of improve­ments
to the road that would result in a 4-lane highway.
Considerable study of the project intended to conclude in a
draft EIS continued until April 1979. The original 4-lane
highway concept was discarded for one that would widen the
pavement from the existing 22 feet to 34 feet, provide a
5-foot cut ditch, and raise the design speed from 35 to
40 miles per hour. As a result of that change, the FHWA
reclassified the project to require only an environmental
assessment rather than a full EIS. Again, local concern
(involving the environmental community), over the reclassi­fication
of the project resulted in the FHWA revising its
decision and requiring a full EIS for the project. Changes
to NEPA adopted by Congress in 1977 resulted in revision of
all federal agency guidelines for the preparation of EIS.
UDOT therefore suspended work on the EIS in 1980 to await
the new directives, and is now reactivating the process.
DESCRIPTION OF STUDY
The first task is to analyze travel constraints in the Canyon,
including safety, maintenance costs, points of substandard
design, and congestion. Accident reports will be reviewed
in an attempt to determine the cause, and accident rates
will be compared with those of comparable roads in the state.
Locations with abnormally high maintenance costs will be
evaluated. This analysis will include calculation of per­mile
costs for the entire length of road, identification of
specific sites of unusually high costs, and comparison of
these costs with statewide road maintenance costs. Highway
segments where the road geometrics may be inadequate for the
overall design speed will be inventoried and assessed. Fi­nally,
the degree and occurrence of congestion on the road
will be determined by identifying the road capacity and
evaluating current traffic volumes. The level of service
that can be provided on the existing highway in year 2010,
with expected traffic increases, will be projected. A re­port
will be prepared explaining the findings of this part
of the study.
The second task will be to prepare a transportation plan for
the corridor, including up to six alternative concepts. The
alternatives will consider specific repairs or improvement
plans for sites where problems have been identified including
spot improvements, resurfacing, new signing, reconstruction
along the existing alignment, and widening of the existing
2
roadway between Right-Hand Fork and Garden City. Such
widening might include slow-moving vehicle lanes, passing
lanes, or minor alignment changes. From Bear Lake Summit to
Garden City, the plan will consider the location of two
totally new, alternative routes, one to the north of the
existing road and one to the south. Each alternative will
be evaluated in terms of costs and benefits, including con­struction
costs, reduction of travel time, vehicle and road
maintenance costs, safety, aesthetics, and recreational factors.
General environmental trade-offs and a comparison of engi­neering
requirements for each alternative will also be in­corporated
into the technical report prepared upon com-pletion
of this study task.
Major geologic features of the study corridor will be iden­tified
and a geotechnical analysis conducted. A description
of engineering conditions of the soils and geology as they
relate to possible construction and maintenance problems
will result from the analysis. Northern Engineering and
Testing of Salt Lake City is a subcontractor to CH2M HILL
for the geotechnical work.
An environmental analysis will then be conducted. A full
environmental impact statement may ultimately be required.
The environmental analysis will include participation of
interest groups, agencies, and the general public to iden­tify
major issues to be investigated in the analysis. The
analysis will be based on literature review and field stud­ies
and will identify possible impacts of each project
alternative and suggest mitigation measures.
SCHEDULE
Work on the project began in June and is expected to be com­pleted
by June 1987, with the possible exception of some
public participation activities and completing the environ­mental
analysis. A study task schedule for major work in
each task is provided below.
Task 1
Task 2
Task 3
Task 4
Analysis of Transportation Need
Started early June 1986; complete August 1986
Location Studies/Transportation Plan
Begin early August 1986; complete late November
1986
Geotechnical Considerations
Begin early September 1986; complete late October
1986
Public Involvement
To be conducted throughout study duration
3
Task 5 Coordination
To be conducted throughout study duration
Task 6 Environmental Analysis
Started June 1986; complete late January 1987
Task 7 Preparation of Documents
Begin early January 1987; complete late May 1987
PUBLIC INVOLVEMENT/AGENCY COORDINATION
A public involvement plan based upon project milestones will
be implemented during the study. In addition to the program
proposed for each study milestone, the following activities
will occur continuously throughout the study:
o Maintenance of a Mailing List - all individuals
an~ interest groups requesting mailings will be
included on this list (list available upon re­quest)
o Local Study Liaison - Valley Engineering, Inc. in
Logan will maintain copies of all informational
material on the study in its Logan office, and
will answer or refer questions to the appropriate
person. CH2M HILL will also perform this service
in its Salt Lake City office
o Local repositories for study materials will be
arranged at the Logan Public Library, Utah State
University Library, Garden City Municipal Offices,
and Salt Lake City Public Library. All informa­tional
materials will also be available at Wasatch/
Cache National Forest offices in Ogden and at the
Utah Department of Transportation offices in Salt
Lake City
MILESTONE 1 - BEGINNING OF PROJECT
o Study Organization and Data Gathering and the
analysis of transportation needs began in early
June 1986.
o Interdisciplinary Team Organization - an interdis­ciplinary
team which includes representatives from
UDOT, USPS, FHWA, the environmental community and
CH2M HILL was organized in June 1986.
o Press Release to be submitted to all media included
on mailing list - week of July 28, 1986.
4
o Project Introduction - a detailed written explana­tion
of the history of this study, the reasons for
conducting this study, and the tasks to be con­ducted,
will be mailed to all groups/individuals
included on the mailing list - week of July 28,
1986.
MILESTONE 2 - COMPLETION OF TRANSPORTATION NEEDS ANALYSIS
The analysis and conclusions of this study should be close
to completion by mid August 1986.
o Press Release to be submitted to all media included
on mailing list - late August 1986.
o Summary Report of Findings/Fact Sheet will be
mailed to all groups/individuals on mailing list -
late August 1986.
o Town Meeting to discuss findings and answer
questions, to be held in Logan - early
September 1986.
o Meetings With Interest Groups as requested - fol­lowing
town meeting - early September 1986.
o Written Summary of activities, response, and
issues will be prepared upon completion of ·the
second phase of the public involvement program -
late September 1986.
MILESTONE 3 - COMPLETION OF ALTERNATIVES DEVELOPMENT
(Prior to environmental impact analysis) - This should occur
near the end of November.
o Press Release giving brief review of study findings
to date, explaining proposed alternatives, and
reviewing the proposed scoping activities will be
submitted to all media on the mailing list - late
November 1986.
o Fact Sheet giving detailed explanation of each
alternative with graphic illustration, explanation
of level of service provided by each, and general
advantages and disadvantages, will be sent to each
entry on mailing list - late November 1986.
o Meetings With Interest/Service Groups expressing
strong interest in the study will be held during
December to discuss the alternatives and identify
their concerns. A maximum of four such meeting
are planned, and as a result some groups might be
requested to meet together. Groups that request
such a meeting might include:
5
Sierra Club
Utah Wilderness Association
Bridgerland Audubon Society
Rich-Cache Tourist Council
Cache County Chamber of Commerce
Bear River Association of Governments
Bear Lake Convention and Visitors Bureau
Cache Economic Development Council
Civic/Service Clubs
o Town Meeting will be held in Logan to summarize
alternatives, report on concerns voiced by groups/
individuals, receive testimony on other concerns.
Issues to be addressed in environmental analysis
will be summarized - early January 1987.
o Press Release reviewing scoping process activities
and issues to be studied in environmental analysis
will be submitted to all media included on mailing
list - mid January 1987.
o Written Summary of all public involvement activi­ties,
response, and issues will be prepared after
the activities of this phase have been conducted -
late January 1987.
MILESTONE 4 - COMPLETION OF DRAFT ENVIRONMENTAL DOCUMENT
This milestone will occur approximately May 29, 1986.
o Videotape explaining the alternatives and discuss­ing
the environmental tradeoffs will be developed
prior to Milestone 4 to be presented during this
stage - Months of February and March 1987.
o Summary Report reviewing findings of the draft
analysis will be mailed to all groups/individuals
included on mailing list - early June 1987.
o Press Release reporting findings of environmental
analysis and schedule for public input/hearings to
be submitted to all media listed in mailing list -
early June 1987.
o Workshop Meeting to present videotape, discuss
environmental analysis findings, allow questions
and answers - Logan, late June 1987.
o Public Hearing to present videotape and receive
testimony on draft environmental analysis - Logan,
July 1987; possible hearing in Ogden or Salt Lake
City, July 1987. Written testimony will be ac­cepted
for 30 days after last hearing.
6
o Written Summary of all public involvement activi­ties,
response, and issues will be prepared after
the activities of Phase 4 have been conducted -
August 1987.
All aspects of the public involvement program will remain
flexible since it must be responsive to the conduct of the
project and the needs of the community. Public involvement
activities will be announced in all press releases.
Public agencies indicating interest in the study will be
included in the public involvement activities. In addition
to the U.S. Forest Service and Federal Highway Adminis­tration,
other public agencies that will be involved in the
study include the Utah Division of Wildlife Resources, Bureau
of Air Quality, Bureau of Water Quality, Geological and
Mineral Survey, and Division of State History.
STUDY ORGANIZATION
In addition to personnel from CH2M HILL and Valley Engineering,
Inc., an interdisciplinary team has been established to provide
input and recommendations throughout the course of the study.
Study team members are listed below.
Team Leader
Commission Representative
Highway Preconstruction
Engineer
Environmental Engineer
Transportation Planning
Recreation
Geotechnical
Public Involvement
Representativea of the
Environmental Community
7
Stan Nuffer CH2M HILL
Todd Weston Utah Dept. of Transportation
Lynn Zollinger Utah Dept. of Transportation
John Neil Utah Dept. of Transportation
Stan Nuffer CH2M HILL
Fred Labar USFS, Logan
Allan Stilley Northern Engineering & Testing
Sheldon Barker CH2M HILL
Jack Spence Sierra Club Landscape Architecture
Clark Ostergaard Wasatch/Cache Nat'l. Forest
Mark Shaw Wasatch/Cache Nat'l. Forest
Duncan Silver FHWA Alternate Environmental
Rudy Lukez
Torn Lyon
Steve. Flint
Bill Helm
QUESTIONS
Contact:
SLC79/d.402
8
Stan Nuffer
Sheldon Barker
Cliff Forsgren
CH2M HILL, Salt Lake City
(801) 363-0200
Gale Larson
Valley Engineering Inc., Logan
(801) 753-0153

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PROJECT INTRODUCTION
STUDY OF U.S. HIGHWAY 89 THROUGH LOGAN CANYON
UTAH DEPARTMENT OF TRANSPORTATION
PURPOSE
The Utah Department of Transportation (UDOT) has the respon­sibility
of maintaining all state and federal highways in a
condition that will allow safe transportation. A number of
specific sites along U.S. Highway 89 in Logan Canyon have
been identified by UDOT as requiring repair in the near fu­ture
to provide safe transportation in the Canyon. Much of
the highway in the Canyon lies within the Cache National
Forest, which is administered by the U.S. Forest Service
(USFS) who must approve all work on the road beyond routine
maintenance. As a result of these currently needed repairs
and other perceived problems, UDOT and USFS have agreed that
an overall transportation plan for the Canyon is necessary
and that a comprehensive study of the possible problems and
needed repairs/improvements should be conducted rather than
examining each site independently as major problems occur.
To begin, UDOT selected CH2M HILL, a consulting firm of
Engineers, Planners, Economists, and Scientists with offices
in Salt Lake City and other communities throughout the country
to conduct the study. Valley Engineering, Inc. of Logan is
a major subcontractor.
This study has three major objectives:
o To identify locations on the road where problems
in safety, maintenance, road design, and capacity
occur, and to document these problems.
o To propose several alternative means, through repair
or improvements, to correct the problems.
o To conduct an analysis of the potential impacts of
the proposed alternatives on the environment.
BACKGROUND
This portion of U.S. 89 has been under scrutiny by UDOT for
some time because of congestion, accidents, and maintenance
problems. The highway has been on UDOT's schedule for im­provement
since the late 1950s. In 1961, improvements were
made to the road between Logan and DeWitt Springs. In 1969,
the section between DeWitt Springs and Right Hand Fork was
improved. Pre-design work on improvements between Right
Hand Fork and Ricks Springs was completed in late 1968, but
following passage of the National Environmental Policy Act
1
(NEPA) in 1969, local concern showed the necessity to re­evaluate
the project. The Federal Highway Administration
(FHWA) determined in 1972 that an environmental impact state­ment
(EIS) would be required for the project in accordance
with NEPA. At this time, the project consisted of improve­ments
to the road that would result in a 4-lane highway.
Considerable study of the project intended to conclude in a
draft EIS continued until April 1979. The original 4-lane
highway concept was discarded for one that would widen the
pavement from the existing 22 feet to 34 feet, provide a
5-foot cut ditch, and raise the design speed from 35 to
40 miles per hour. As a result of that change, the FHWA
reclassified the project to require only an environmental
assessment rather than a full EIS. Again, local concern
(involving the environmental community), over the reclassi­fication
of the project resulted in the FHWA revising its
decision and requiring a full EIS for the project. Changes
to NEPA adopted by Congress in 1977 resulted in revision of
all federal agency guidelines for the preparation of EIS.
UDOT therefore suspended work on the EIS in 1980 to await
the new directives, and is now reactivating the process.
DESCRIPTION OF STUDY
The first task is to analyze travel constraints in the Canyon,
including safety, maintenance costs, points of substandard
design, and congestion. Accident reports will be reviewed
in an attempt to determine the cause, and accident rates
will be compared with those of comparable roads in the state.
Locations with abnormally high maintenance costs will be
evaluated. This analysis will include calculation of per­mile
costs for the entire length of road, identification of
specific sites of unusually high costs, and comparison of
these costs with statewide road maintenance costs. Highway
segments where the road geometrics may be inadequate for the
overall design speed will be inventoried and assessed. Fi­nally,
the degree and occurrence of congestion on the road
will be determined by identifying the road capacity and
evaluating current traffic volumes. The level of service
that can be provided on the existing highway in year 2010,
with expected traffic increases, will be projected. A re­port
will be prepared explaining the findings of this part
of the study.
The second task will be to prepare a transportation plan for
the corridor, including up to six alternative concepts. The
alternatives will consider specific repairs or improvement
plans for sites where problems have been identified including
spot improvements, resurfacing, new signing, reconstruction
along the existing alignment, and widening of the existing
2
roadway between Right-Hand Fork and Garden City. Such
widening might include slow-moving vehicle lanes, passing
lanes, or minor alignment changes. From Bear Lake Summit to
Garden City, the plan will consider the location of two
totally new, alternative routes, one to the north of the
existing road and one to the south. Each alternative will
be evaluated in terms of costs and benefits, including con­struction
costs, reduction of travel time, vehicle and road
maintenance costs, safety, aesthetics, and recreational factors.
General environmental trade-offs and a comparison of engi­neering
requirements for each alternative will also be in­corporated
into the technical report prepared upon com-pletion
of this study task.
Major geologic features of the study corridor will be iden­tified
and a geotechnical analysis conducted. A description
of engineering conditions of the soils and geology as they
relate to possible construction and maintenance problems
will result from the analysis. Northern Engineering and
Testing of Salt Lake City is a subcontractor to CH2M HILL
for the geotechnical work.
An environmental analysis will then be conducted. A full
environmental impact statement may ultimately be required.
The environmental analysis will include participation of
interest groups, agencies, and the general public to iden­tify
major issues to be investigated in the analysis. The
analysis will be based on literature review and field stud­ies
and will identify possible impacts of each project
alternative and suggest mitigation measures.
SCHEDULE
Work on the project began in June and is expected to be com­pleted
by June 1987, with the possible exception of some
public participation activities and completing the environ­mental
analysis. A study task schedule for major work in
each task is provided below.
Task 1
Task 2
Task 3
Task 4
Analysis of Transportation Need
Started early June 1986; complete August 1986
Location Studies/Transportation Plan
Begin early August 1986; complete late November
1986
Geotechnical Considerations
Begin early September 1986; complete late October
1986
Public Involvement
To be conducted throughout study duration
3
Task 5 Coordination
To be conducted throughout study duration
Task 6 Environmental Analysis
Started June 1986; complete late January 1987
Task 7 Preparation of Documents
Begin early January 1987; complete late May 1987
PUBLIC INVOLVEMENT/AGENCY COORDINATION
A public involvement plan based upon project milestones will
be implemented during the study. In addition to the program
proposed for each study milestone, the following activities
will occur continuously throughout the study:
o Maintenance of a Mailing List - all individuals
an~ interest groups requesting mailings will be
included on this list (list available upon re­quest)
o Local Study Liaison - Valley Engineering, Inc. in
Logan will maintain copies of all informational
material on the study in its Logan office, and
will answer or refer questions to the appropriate
person. CH2M HILL will also perform this service
in its Salt Lake City office
o Local repositories for study materials will be
arranged at the Logan Public Library, Utah State
University Library, Garden City Municipal Offices,
and Salt Lake City Public Library. All informa­tional
materials will also be available at Wasatch/
Cache National Forest offices in Ogden and at the
Utah Department of Transportation offices in Salt
Lake City
MILESTONE 1 - BEGINNING OF PROJECT
o Study Organization and Data Gathering and the
analysis of transportation needs began in early
June 1986.
o Interdisciplinary Team Organization - an interdis­ciplinary
team which includes representatives from
UDOT, USPS, FHWA, the environmental community and
CH2M HILL was organized in June 1986.
o Press Release to be submitted to all media included
on mailing list - week of July 28, 1986.
4
o Project Introduction - a detailed written explana­tion
of the history of this study, the reasons for
conducting this study, and the tasks to be con­ducted,
will be mailed to all groups/individuals
included on the mailing list - week of July 28,
1986.
MILESTONE 2 - COMPLETION OF TRANSPORTATION NEEDS ANALYSIS
The analysis and conclusions of this study should be close
to completion by mid August 1986.
o Press Release to be submitted to all media included
on mailing list - late August 1986.
o Summary Report of Findings/Fact Sheet will be
mailed to all groups/individuals on mailing list -
late August 1986.
o Town Meeting to discuss findings and answer
questions, to be held in Logan - early
September 1986.
o Meetings With Interest Groups as requested - fol­lowing
town meeting - early September 1986.
o Written Summary of activities, response, and
issues will be prepared upon completion of ·the
second phase of the public involvement program -
late September 1986.
MILESTONE 3 - COMPLETION OF ALTERNATIVES DEVELOPMENT
(Prior to environmental impact analysis) - This should occur
near the end of November.
o Press Release giving brief review of study findings
to date, explaining proposed alternatives, and
reviewing the proposed scoping activities will be
submitted to all media on the mailing list - late
November 1986.
o Fact Sheet giving detailed explanation of each
alternative with graphic illustration, explanation
of level of service provided by each, and general
advantages and disadvantages, will be sent to each
entry on mailing list - late November 1986.
o Meetings With Interest/Service Groups expressing
strong interest in the study will be held during
December to discuss the alternatives and identify
their concerns. A maximum of four such meeting
are planned, and as a result some groups might be
requested to meet together. Groups that request
such a meeting might include:
5
Sierra Club
Utah Wilderness Association
Bridgerland Audubon Society
Rich-Cache Tourist Council
Cache County Chamber of Commerce
Bear River Association of Governments
Bear Lake Convention and Visitors Bureau
Cache Economic Development Council
Civic/Service Clubs
o Town Meeting will be held in Logan to summarize
alternatives, report on concerns voiced by groups/
individuals, receive testimony on other concerns.
Issues to be addressed in environmental analysis
will be summarized - early January 1987.
o Press Release reviewing scoping process activities
and issues to be studied in environmental analysis
will be submitted to all media included on mailing
list - mid January 1987.
o Written Summary of all public involvement activi­ties,
response, and issues will be prepared after
the activities of this phase have been conducted -
late January 1987.
MILESTONE 4 - COMPLETION OF DRAFT ENVIRONMENTAL DOCUMENT
This milestone will occur approximately May 29, 1986.
o Videotape explaining the alternatives and discuss­ing
the environmental tradeoffs will be developed
prior to Milestone 4 to be presented during this
stage - Months of February and March 1987.
o Summary Report reviewing findings of the draft
analysis will be mailed to all groups/individuals
included on mailing list - early June 1987.
o Press Release reporting findings of environmental
analysis and schedule for public input/hearings to
be submitted to all media listed in mailing list -
early June 1987.
o Workshop Meeting to present videotape, discuss
environmental analysis findings, allow questions
and answers - Logan, late June 1987.
o Public Hearing to present videotape and receive
testimony on draft environmental analysis - Logan,
July 1987; possible hearing in Ogden or Salt Lake
City, July 1987. Written testimony will be ac­cepted
for 30 days after last hearing.
6
o Written Summary of all public involvement activi­ties,
response, and issues will be prepared after
the activities of Phase 4 have been conducted -
August 1987.
All aspects of the public involvement program will remain
flexible since it must be responsive to the conduct of the
project and the needs of the community. Public involvement
activities will be announced in all press releases.
Public agencies indicating interest in the study will be
included in the public involvement activities. In addition
to the U.S. Forest Service and Federal Highway Adminis­tration,
other public agencies that will be involved in the
study include the Utah Division of Wildlife Resources, Bureau
of Air Quality, Bureau of Water Quality, Geological and
Mineral Survey, and Division of State History.
STUDY ORGANIZATION
In addition to personnel from CH2M HILL and Valley Engineering,
Inc., an interdisciplinary team has been established to provide
input and recommendations throughout the course of the study.
Study team members are listed below.
Team Leader
Commission Representative
Highway Preconstruction
Engineer
Environmental Engineer
Transportation Planning
Recreation
Geotechnical
Public Involvement
Representativea of the
Environmental Community
7
Stan Nuffer CH2M HILL
Todd Weston Utah Dept. of Transportation
Lynn Zollinger Utah Dept. of Transportation
John Neil Utah Dept. of Transportation
Stan Nuffer CH2M HILL
Fred Labar USFS, Logan
Allan Stilley Northern Engineering & Testing
Sheldon Barker CH2M HILL
Jack Spence Sierra Club Landscape Architecture
Clark Ostergaard Wasatch/Cache Nat'l. Forest
Mark Shaw Wasatch/Cache Nat'l. Forest
Duncan Silver FHWA Alternate Environmental
Rudy Lukez
Torn Lyon
Steve. Flint
Bill Helm
QUESTIONS
Contact:
SLC79/d.402
8
Stan Nuffer
Sheldon Barker
Cliff Forsgren
CH2M HILL, Salt Lake City
(801) 363-0200
Gale Larson
Valley Engineering Inc., Logan
(801) 753-0153